Administrative Reform
| Published date | 01 December 1968 |
| Author | Gerald Caiden |
| Date | 01 December 1968 |
| DOI | 10.1177/002085236803400404 |
| Subject Matter | Articles |
Administrative Reform
by Gerald CAIDEN,
The Hebrew University, Jerusalem
UDC 35.047
Reform is based on the simple idea that
not much more than extended footnotes or
man should not wait for changes to take place
hurried afterthoughts. Where more specialized
naturally but should seek to speed, by arti-
studies use the words administrative reform’
ficial means, improvements in the world order.
in the title, they are usually general histories
Changes should be channelled, directed, arti-
or case studies in administrative dynamics.
ficially stimulated and, if need be, forced on
The few writings devoted solely to administra-
people against their will. Reformers deny that
tive reform are fragmentary and embryonic.
all changes are necessarily for the best or that
They are mainly descriptive and analytical of
change in itself is enough. Sometimes it is
narrow, if not unique, circumstances from
better to break a few heads to reduce universal
which little of a general nature can be deduced.
human ills.
What distinguishes administrative
Nevertheless, they constitute a growing body
reformers is, of course, their specialized con-
of literature to which can be added general
cern with things administrative and their belief
studies of reform, social change, acculturation
that (a) administrative deficiencies are respon-
and group politics which can be applied to the
sible for much preventable human suffering,
subject.
(b) administrative deficiencies cannot be cured
by automatic self-adjustment, and (c) accu-
Administrative Theory .
mulating human suffering arising out of the
and Administrative Reform
speed of change demands redress through im-
posed alterations in administrative activities,
In administrative theory, the phenomenon
that is, even the most dynamic, adaptive and
of administrative reform is being explored at
responsive administrations may fail to meet
the present time as if it were something new,
expectations in rapidly changing circumstances.
whereas it is as old as administration itself
There has to be continuous administrative re-
and dates back to when homo sapiens first
form.
rejected the status quo for a presumed better
But what exactly is administrative reform ?
alternative. It was not enough to be dissatis-
What do reform movements, reformers and
fied, to investigate the causes of dissatisfaction
reforms have in common ? What conditions
and to explain perceived differences; one had
give rise to administrative reform demands ?
to think of something better and work for its
Who are administrative reformers? What
adoption. Homo sapiens was a born reformer.
obstacles do administrative reformers have to
Man could improve himself and improve upon
face ?
Is it possible to devise
his
a manual of
improvements providing human resistance
action for potential reformers ? Is a theory
to novelty could be overcome. Yet perhaps
of administrative reform conceivable ? Can
never before has there been such widespread
the results of reform be measured? How is
interest in administrative reform or the need
reform achieved, by whom and with what
to
sup-
investigate its nature so imperative. There
port ? What makes one
is
person a reformer
hardly an educated person who is not him-
and the next his opponent ? Perhaps answers
self involved in administrative reform or who
to these questions will always remain
is
unsa-
not reminded of it through modern mass
tisfactory. A survey of published research to
media. Huge sums are being spent on admin-
date indicates that much
istrative reform
more needs to be
programmes, such as automa-
done before even tentative hypotheses can be
tion and technical assistance, based unfortuna-
tested. There is still no comprehensive study
tely on untested premises.
of the subject in any of the major textbooks.
Exaggerated ideas about the potential con-
If it is mentioned at all, what is written is
tribution of administrative reform largely stem
348
from the indiscriminate use of the term for
proposals will improve the status quo and that
any improvement or change in administration,
the anticipated results are worth overcoming
attributable to the preoccupation of adminis-
complacency and resistance. Neither assump-
trative theorists with order and stability. In
tion can be supported by conclusive evidence.
concentrating on the pursuit of universal prin-
What exactly constitutes administrative impro-
ciples, the more elusive informal relationships
vement ?
Improvements in what and to
and adaptive processes tended to be neglected.
whom ? Improvements in one area may be
More recent studies of administrative dynamics
offset by deterioration elsewhere. Even if
have not yet redressed the imbalance. While
administrative performance is improved, other
much is known about structures and relation-
values -
equality, democracy, security -
may
ships, less is known about movement and inno-
be sacrificed. Everybody supports reform in
vation.
Though administrative reform has
general but nobody supports it in particulars.
eluded concerted probes based on agreed termi-
Should opposition be overcome, the results may
nology, it remains an important factor in every
still prove disastrous. On the other hand, it
administrative situation.
The pressure of re-
is becoming increasingly difficult to reject the
form alone is sufficient to keep every situation
underlying idea of progress and as this moral
fluid -
a choice must be made between the
imperative increases in strength, so it will be
status quo and any conceived alternative, if
harder to object to reform and studies whose
only by default. And administrative reform
ulterior motive is to discover ways by which
rests on the assumption that there is a better
man’s lot could be improved. Indeed, much
alternative to the status quo. At no time in
of the literature on administration has had a
human history have men stopped looking for
strong reformist element. Students of admin-
a better alternative; no sooner does one set
istrative theory cannot avoid contact with the
of reformers disappear, then another set ap-
subjective element and many unconsciously
pears. This will always be so as long as men
embrace the values of efficiency, reform and
seek and attain perfection and there is no sign
practical optimization.
that utopia is just around the corner. The
need for administrative reform will continue
to tax human ingenuity for the foreseeable
The subjectivity of administrative reform
future. Hence it is a continuous and natural
-makes it prey to fashion, fad and fancy. One
pursuit unless man is prepared to accept his
particular type of reform -
such as the Om-
own administrative deficiencies.
budsman -
will suddenly and inexplicably
catch on and spread rapidly through admin-
What constitutes maladministration ? Nor-
istrative teaching. For a time, it will be con-
mally an administration is considered healthy
sidered a universal panacea, until wrongly ap-
if it meets all demands put on it without
plied, it will fail expectations and just as quickly
causing alarm. But some people are prepared
fall from grace as disillusion spreads and so-
to tolerate much more than others.
This sa-
mething else replaces it. Reforms go through
tisficing criterion does not satisfy those who
a peculiar cycle, starting out with revolutionary
require the highest possible attainable standards
reputation, succumbing to respectability and
or those who want perfection. The satisficers
finishing as reactionary. Many go beyond ad-
wait for something to go wrong before they
ministration into politics, psychology, public
institute reforms by which time action might
law, industrial design and are similarly in-
be too late. The practical optimizers seek to
fluenced by reforms in these areas. There is
diminish the possibility of failure by antici-
no firm boundary line; demarcation is more
pating crises and introducing reforms whenever
of theoretical convenience than practical...
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